中国流动人口的法律治理初探

发布时间：2018-10-21 10:25

【摘要】：随着我国工业化、城市化的快速推进，城市化进程产生的“拉力”和城乡差异、地区失衡产生的“推力”，使得流动人口特别是农民工的数量居高不下且不断增加。据第六次全国人口普查数据显示，至2010年11月我国流动人口数量高达2.21亿人，占全国总人口的16.5％。同2000年人口普查相比，流动人口数增长了81.03%。如此庞大的流动人口规模以及迅速增长的趋势，给我国流动人口的社会管理带来了严峻挑战。建国以来，在二元户籍制度、市场经济体制转型、政府职能转变的宏观背景下,我国流动人口管理体制的建构、发展与成型呈现出一定的阶段性特征,先后经历了1949年-1977年期间的严格限制阶段；1978年-1999年期间的防范式管理阶段；2000年以来进入了属地化管理阶段。尽管目前我国针对流动人口的相关管理政策和法律法规还处于大变革时期，但全国各地区结合自身的发展情况，针对流动人口的社会管理问题，形成了不同的法律治理实践模式。大致可分为三种模式：治安管理拓展型（全国绝大多数省市采用）、专业机构协调型（代表城市是上海、无锡和深圳）、大人口机构统筹型（代表城市是江苏的张家港市和浙江的嘉兴市）。通过实践可以发现我国对流动人口的管理主要以政府为管理主体，且基本停留在管制层面，而非真正意义上的治理。具体说来，当前我国流动人口的法律治理存在以下困境：主管行政部门协调性差，管理队伍不足；政府主导管理，流动人口参与程度低；管理制度设计不合理，，流动人口权益保障不够；相关流动人口信息采集不清，管理效率低下。而问题的根源就在于管理理念滞后、政策法规不健全、户籍制度的二元化。所以尽管政府各职能部门对流动人口的社会管理投入了大量的人力、物力和财力，流动人口管理工作难以适应现实需要。而完善流动人口社会管理是我国在未来城市化进程和现代化发展中必须回应的重大理论及现实问题，为此，本文在借鉴美国、日本等发达国家的流动人口管理经验的基础上，提出了主体层面形成政府、社区、基层组织齐抓共管的多元治理格局；客体层面实现流动人口基本公共服务均等化；方式层面以法律为主，形成多措并举的综合治理具体路径，以期我国流动人口的管理走向流动人口的法律治理。
[Abstract]:With the industrialization of our country, the rapid advancement of urbanization, the "pull force" produced by urbanization process and the difference between urban and rural areas, and the "thrust" of regional imbalance, the number of floating population, especially migrant workers, has been increasing. According to the data of the sixth national census, by November 2010, the number of floating population in China is as high as 221 million, accounting for 16.5 percent of the total population of the country. Compared with the 2000 census, the number of floating population increased by 81. 03%. Such a large scale of floating population and the trend of rapid growth have brought severe challenges to the social management of floating population in our country. Since the founding of the people's Republic of China, under the macro background of the dual household registration system, the transformation of the market economy system and the transformation of government functions, the construction, development and shaping of the management system of the floating population in China have shown certain stage characteristics. It has experienced the strict restriction stage from 1949 to 1977, the preventive management stage from 1978 to 1999, and the localization management stage since 2000. Although the relevant management policies and laws and regulations for the floating population in China are still in a period of great change, the social management of the floating population is aimed at the social management of the floating population in various regions of the country in light of their own development situation. Formed different legal governance practice model. It can be roughly divided into three modes: the expanded type of public security management (adopted by the vast majority of provinces and cities in the country), and the type of coordination of professional organizations (representing the city of Shanghai, Wuxi and Shenzhen), large population organizations as a whole (representing the cities of Zhangjiagang City, Jiangsu Province and Jiaxing City, Zhejiang Province). Through practice, we can find that the government is the main body of the management of the floating population in our country, and basically stays at the level of control, rather than the real governance. Specifically, the current legal governance of floating population in China has the following difficulties: the administrative department in charge of poor coordination, insufficient management team, government-led management, low level of participation of floating population, unreasonable design of management system, The protection of floating population rights and interests is not enough; the information collection of floating population is not clear, and the management efficiency is low. The root of the problem lies in the lagging management concept, imperfect policies and regulations, and the dualization of the household registration system. Therefore, although the government departments put a lot of manpower, material and financial resources into the social management of floating population, the management of floating population is difficult to meet the needs of reality. To perfect the social management of floating population is an important theoretical and practical problem that our country must respond to in the process of urbanization and modernization in the future. Therefore, this paper draws lessons from the experiences of the United States, Japan and other developed countries in the management of floating population. Put forward the multi-governance pattern of government, community and grass-roots organizations at the subject level; realize the equalization of basic public services of floating population at the object level; take the law as the main way to form the concrete path of comprehensive management. With a view to the management of floating population towards the legal management of floating population.
【学位授予单位】：湘潭大学
【学位级别】：硕士
【学位授予年份】：2012
【分类号】：D631.42;D922.1

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